The sentencing guidelines gave federal law enforcement officials an incentive to get lots of "easy" prosecutions of nobodys as opposed to fewer drug kingpin prosecutions. This seems to be how federal law enforcement works. I expect to see many loan brokers prosecuted for mortgage fraud; I will be surprised to see any financial institution executives which sold: CDOs, CPDOs or bank executives who thought their SIVs need not even be disclosed when they had "liquidity puts" prosecuted. "Round up the usual suspects" said Captain Renault in "Casablanca", 1942.
Governments seem to work this way. In Stalin's USSR, a screw making factory was given a screw quota. Result: billions of tiny screws as opposed to various size screws the USSR needed. The Gosplan geniuses had a new idea: give the factory a ton screw quota. Result: a small number of gigantic screws as it was easier to make large screws by the ton instead of small ones. Moral of the story: incentives count.